Leadership in

Norway’s Civil Service

Leadership in
Norway’s Civil Service
 Leadership in Norway’s Civil Service

CONTENTS

Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4
1. The distinctive nature of leadership in the Civil Service . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6
1.1 Serving the community and safeguarding values . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3
1.2 Meeting political challenges . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4
2. Focus areas for leadership in the Civil Service . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9
2.1 Targets, results and customer-focus . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6
2.2 Cooperation and coordination . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7
2.3 Competence, learning and development . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8
2.4 Co-determination and participation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9
3. Leadership development in the Civil Service . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13
Leadershipposter . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 17

3
 Introduction

4
 Leadership in Norway’s Civil Service

This document concerns leadership in the Civil Service their careers or have long management experience.
in Norway. It is primarily intended for leaders who have Leadership requirements and expectations change
managerial responsibility in a central government body, over time, and responsibilities and roles must there-
but it is also relevant for employees, union representa- fore be reviewed at regular intervals. This document
tives and others with an interest in leadership in the includes a number of questions for reflection that may
public sector. be useful in such a review process. (These questions
are placed in boxes).
The document sets out the basis, framework and princi-
ples of leadership in the Civil Service. It establishes High-level officials and other Civil Service managers
that the leadership policy must be based on the distinc- can use this policy document to draw up a local leader-
tive nature, value base and overall objectives of the ship profile, both individually and as a group. The
Civil Service. profile must take into account the leader’s role, position
in the organisation, responsibilities and challenges.
The Norwegian Government has decided that this These guidelines can also be used in connection with
document is to be used for developing leadership leadership development, recruitment and the intro-
within the Civil Service. duction of new leaders.

Civil Service managers are required to contribute to Leadership is important. However, its effects are not
the development of a public sector that is strong and always visible. In crisis situations, major restructuring
effective, provides high-quality public services, and processes or particularly demanding individual matters,
ensures freedom of choice and customer participation. high quality leadership tends to be both visible and
Managers have a responsibility for taking environ- decisive for a positive outcome. But good leadership
mental challenges seriously and for ensuring that the is also important in the day-to-day work of the Civil
public sector reflects the diversity of our society. Service because:
Managers are expected to contribute to public sector
reform with the aim of providing more welfare with • political objectives must be realised with a view to

less administration and more open, accessible and ensuring the best interests of the public and the
customer-focused services. The public sector must have environment in an increasingly diverse society;
high ambitions with regard to professional standards,
customer satisfaction, a healthy working environment, • employees need stimulation and support in order

cost control and continuous human resource development. to ensure that their combined competence is
made best use of in solving tasks; and
The Civil Service will show appreciation for high quality
leadership, and further efforts will be encouraged. At • efficiency and willingness to set priorities are

the same time managers are encouraged to take a critical needed to ensure that limited resources are
view of their own leadership. This applies to managers used effectively.
at all levels, whether they are at the beginning of

For reflection
Consider the following description of the overall perspective on
leadership in the Civil Service:

Leaders in the Civil Service, in cooperation with their staff,

shall seek to achieve results that are in the community’s best
interests in accordance with political priorities and basic
social values.

What is your immediate reaction to this statement?

How does it relate to your leadership approach?

5
1. The distinctive nature of leadership in the Civil service

1. The distinctive nature of leadership

in the Civil service
Leadership involves working together with employees, The Civil Service has complex tasks to perform and
their organisations and other parties to achieve results. various considerations to take into account. This makes
Leadership in the Civil Service differs from leadership Civil Service leadership complicated. The diversified
in other contexts in that the Civil Service has a particu- Civil Service requires diversified leadership. Leadership
lar basis in and mandate vis-à-vis society as a whole. functions and roles vary according to level, framework
conditions, type of responsibility, competence require-
The Civil Service belongs to the community and is ments and degree of autonomy. The ministries, supervi-
committed to the principles of democracy and the rule sory bodies, directorates and other public bodies are
of law regardless of who is in power. But it is also a tool part of the political-administrative system. At the same
for the elected authorities. time, the Civil Service must ensure continuity regard-
less of changes in the political leadership. These
considerations form the framework for leadership in
1.1 Serving the community the civil service.
and safeguarding values
The public administration is based on fundamental
The Civil Service exists for the public. It acts on values that have deep roots in Norwegian culture
behalf of the community, exercises public authority and and traditions. Many of these values are universal
provides certain services to the general public, the and are also reflected in a number of human rights
business community and the rest of the private sector. conventions that Norway has approved. These values
characterise excellent administrative practice. They
• The Civil Service is legitimately entitled to issue must be reflected in the tasks performed by the public
instructions to individuals, public bodies and administration and in the way they are performed.
private organisations.
• The Civil Service must safeguard members of the • Democratic values such as the principles of
public and their fundamental rights, including the representative government, freedom of expression,
right of participation in democratic processes and equality, participation, involvement in decision-
the right to fair treatment. making, community responsibility, customer focus
• The Civil Service provides various services to the and transparency.
public. Some of these are services the public are • Rule-of-law values such as the principle of legality

entitled to, while others are offered to those who (i.e. that the exercise of authority requires a
wish to make use of them. Some services are statutory basis), neutrality, equal treatment, justice,
available to everyone regardless of social or predictability and the principle of hearing both
economic status, while others are intended for sides of a case.
specific groups.

International administrative values

Norway shares many of its administrative values with
other countries. In a study of core values in 28 EU
countries and applicant countries in 2006, the following
values had the highest score: the principle of the rule of
law, impartiality/objectivity, transparency, professionalism,
duty of care and accountability.

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 Leadership in Norway’s Civil Service

Sammendrag og konklusjoner

The Civil Service acts as a steward for the community’s

assets and resources, and Civil Service leaders must
ensure that these are properly managed, well taken
care of and effectively utilised. The public must be able
to feel confident that these resources are used in line
with political targets. This imposes special requirements
with regard to caution and impartiality. This is impor-
tant for the Civil Service’s legitimacy and reputation.
For reflection
Civil Service leaders have a responsibility to further
develop democracy in the workplace both because it ¥¥ What are the most important values
is fair and because it is effective. Managers and staff in your leadership approach?
must work together to perform tasks in a way that ¥¥ Is it obvious to your staff what these values
ensures the best interests of the general public, and are? If so, in what way?
specific customers and clients. Civil Service managers ¥¥ Is there any discrepancy between what you
must ensure a good framework both for representative consider important and the expectations
co-determination, in accordance with the relevant agree- placed on you as a leader in the Civil Service?
ments and regulations, and for employee participation. If so, does this pose a dilemma?
Staff must be respected and involved in such a way
that their combined skills and expertise are utilised
to produce high quality results. Managers must dele-
gate tasks, provide guidance and follow up individual
employees, and at the same time set clear guidelines and
performance requirements. Employees’ organisations
must be treated as equal partners and with respect.
1.2 Meeting political challenges
Civil Service managers must highlight, express and
realise the values of the public administration. At times Leaders in the Civil Service face many expectations;
there may be a conflict between the various values. from the general public, whom the Civil Service is
Managers must therefore balance them with great expected to serve, from their own staff, from the Storting
care, for example taking professionalism and quality (Parliament), and from the Government, which consti-
into account on the one hand and efficiency on the other. tutes the political leadership in the country. The Civil
Service must help to realise visions, ideas and the prin-
ciple of solidarity in ways that are not possible for indi-
Relevant statutes, regulations viduals, companies or the market. But this entails
obligations. The Civil Service must follow the proper
and agreements for the Civil
procedures and set an example. Civil service managers
Service and its managers must play a proactive role in efforts to achieve results.
Managers are needed who seek to ensure that:
• The Public Administration Act
• The Freedom of Information Act
• The Working Environment Act • the public are provided with excellent customer-
• The Civil Service Act oriented services with focus on transparency,
• The Basic Collective Agreement freedom of choice, participation in decision
for the Civil Service making, and high quality;
• The Basic Agreement for the Civil Service • due account is taken of the rule of law, and that all
• The ethical guidelines for government matters are handled in a professional and responsible
employees and any local ethical guidelines. manner;
• effectiveness is increased through careful

7
1. The distinctive nature of leadership in the Civil service

prioritisation, purposeful measures, good

utilisation of resources and cost control;
• there is continual improvement and development

in the manager’s area of responsibility by means

of appropriate management systems and a stimu-
lating organisational culture;
• employees have a sustainable and healthy working

environment, challenging tasks and an opportunity

to continually develop their knowledge and skills; For reflection
• the Civil Service is a responsible consumer that

seeks to use environmentally friendly goods and ¥¥ What are the defining characteristics
services; of Civil Service leadership?
• the Civil Service acts responsibly and applies high ¥¥ In what ways does it differ from leadership
ethical standards in all its activities; in the private sector? What are the most
• and diversity and a broad range of skills and important similarities?
expertise are ensured by recruiting staff from ¥¥ What obligations do you have towards the
groups that do not always have ready access to general public? To what extent does this
the labour market. affect your leadership role?
¥¥ What do you find most challenging in your
The Civil Service is an instrument for the elected political work as a leader in the Civil Service?
authorities. Some Civil Service managers are asked to ¥¥ As a leader, you have a duty of loyalty to the
give advice and guidance to the political leadership, political leadership, to your staff and to the
and they are required to loyally implement policies general public. How do you reconcile these
once they are decided. At the same time, managers different loyalties?
must seek to ensure that decisions are based on
professionally and legally sound assessments and
that they take proper account of the interests of the
general public both today and in the future. There may impact assessments. They must have courage. The duty
be a clash between these two considerations. Short-term of loyalty must not be imposed in such a way that it
political gains are sometimes made at the expense of compromises a manager’s professional integrity or
long-term policy goals. undermines the regard for well-informed and knowledge-
based decisions. Managers have a responsibility for
Civil Service managers have a duty to make politicians ensuring that freedom of expression is safeguarded
aware of such conflicts. They must carry out critical for all Civil Service employees within the framework
analyses, provide constructive counter-arguments, of the ethical guidelines for the Civil Service and
explore alternative solutions and carry out reliable notification routines in the agency concerned.

8
 Leadership in Norway’s Civil Service

Sammendrag og konklusjoner

2. Focus areas for leadership in the Civil service

The previous chapter dealt with leadership in the Agencies that have direct contact with customers and
Civil Service in relation to the general values and the general public gain insight into how the use of policy
considerations that characterise public administration instruments affects individuals, the private sector and
in a well developed democracy. This chapter looks other parts of society. Managers must ensure that this
more closely at key focus areas for all leadership in knowledge is gathered and used in their respective
the Civil Service. areas of responsibility, and that it is taken into account
in developing general framework conditions. In many
cases, different needs and considerations will have to
2.1 Targets, results and customer-focus be weighed up against each other, for example in terms
of the distribution of limited resources and the exercise
The manager must ensure high quality results and of public authority. Managers have a particular respon-
achieve the targets set within his or her area of sibility for dealing with dilemmas and conflicting
responsibility. The principles of performance man- considerations.
agement are set out in the Regulations for Financial
Management in the Government Administration. The use of ICT (Information and Communication
Performance management has been widely imple- Technology) has changed the global distribution of
mented in the public administration, and has increased labour, world trade, business organisation, efficiency
the degree of autonomy for the individual manager and the range of services available. Some potential
within the given targets and performance requirements. provided by advances in ICT is still unexploited by
the public sector. Identifying and following up this
The introduction of performance management has potential is a leadership challenge.
increased attention on results and generally appears
to have improved efficiency and performance, primarily Civil Service managers must:
within the individual government agencies. However, • ensure results consistent with the overall objectives

public administration can also involve long, complex of their respective sectors, while at the same time
value chains, conflicts between various objectives, and taking into account cross-sectoral objectives and
results that are difficult to measure against simple criteria. considerations;
Good flow of information, transfer of knowledge and • ensure a good management dialogue and seek

coordination are necessary in all phases and areas of to raise awareness of the effects of various policy
public administration. Better coordination between instruments;
agencies and levels of administration would generally
contribute to a more effective use of resources and
better performance.

Managers have a responsibility for implementing overall

objectives in their respective areas of responsibility, For reflection
using the resources at their disposal effectively and
distributing tasks in the best possible way in relation ¥¥ What are the greatest challenges in your area
to achieving these objectives. Various tools are designed of responsibility as regards prioritising targets
to clarify authority and responsibility for results, such and tasks within the given resource framework?
as letters of allocation, individual contracts for managers, ¥¥ What are the strengths and weaknesses of
and dialogue between ministries and subordinate performance management in your area of
agencies (the on-going management dialogue). The responsibility? Does it help to clarify the degree
use of resources and the results achieved must be of autonomy you have as a leader?
documented. Managers must ensure that the effects ¥¥ Do you find the autonomy you have to be too
of alternative approaches are made clear. This is a limited? If so, what could be done to change
necessary basis for political decisions. this?

9
2. Focus areas for leadership in the Civil service

• contribute to effective coordination between the

various administrative levels; aim is to foster a solution-oriented culture of coopera-
• contribute to improving the government’s policy
tion and team spirit. This is particularly important
instruments in terms of customer needs and at the with a view to addressing the major challenges related
same time ensure that different considerations are to environmental and climate issues, which can only
taken into account; be dealt with through a joint effort.
• actively develop their own leadership role and

degree of autonomy within the current frame- Viewed as a whole, this requires responsible, clear
work, in dialogue with their superiors, colleagues, and courageous leaders who take a proactive role
staff and employees’ representatives; and and promote dialogue and coordination both within
• seek actively to use ICT to develop and improve
and between agencies and levels of administration.
the range of services.
Civil Service managers must:
• clarify lines of responsibility, distribution of tasks
2.2 Cooperation and coordination and forms of communication so as to promote co-
operation and ensure the best possible coordination;
• seek to prevent and resolve conflicts, and use
Civil Service leaders are involved in extensive coope-
ration both within the public administration and with incentives that foster communication, cooperation
bodies outside it. This cooperation is partly formalised and appropriate coordination between agencies
and structured and partly informal and “ad hoc”. A and levels of administration;
• promote team spirit and technical expertise as a
number of different tools and mechanisms are used
for coordination in the central administration, including driving force for closer cooperation with other
for the preparation of budget propositions, bills and government or private institutions;
• look beyond the boundaries of their own areas of
white papers. A number of forms of cooperation and
coordination have also been established between responsibility, and ensure coordinated compliance
external agencies. Nevertheless, there is a constant with international obligations;
• use the opportunities provided by ICT and ensure
need for improving cooperation and strengthening
coordination. The hierarchical structure of the central that operations and competence-building in the
administration ensures orderly relations vis-à-vis the ICT area are properly taken care of; and
• use alternative organisational structures to ensure
political leadership, within the administration and vis-
à-vis the general public. However there can easily be that flexible, task-oriented work forms can be
too one-sided a focus on one’s own organisation or used where appropriate.
sector, which can result in gaps between sectors,
duplication of effort, and services that are poorly
suited to the needs of customers.

When performance management is tailored to specific For reflection

agencies, the need for direct contact and coordination
between these agencies increases. New tasks and ¥¥ Draw a diagram of your most important
solutions across well established professional and cooperative relationships. Who do you
cooperate well with and why?
agency boundaries may result in new patterns of
¥¥ How can this experience help you to
organisation and coordination. ICT is gaining increasing
cooperate better with those you cooperate
importance for solution of tasks, for cooperation and less well with?
communication and for further development of the ¥¥ What are the greatest challenges as regards
range of services provided. achieving appropriate cooperation? How can
The Civil Service must use and improve the coordi- you meet these challenges?
nation mechanisms that already exist in the public ¥¥ What are the greatest challenges as regards
administration and encourage the development and achieving suitable coordination? How can
use of new methods of cooperation both within and you meet these challenges?
between the various parts of the administration. The

10
 Leadership in Norway’s Civil Service

Sammendrag og konklusjoner

2.3 Competence, learning and development for as long as possible, for example, by providing oppor-
tunities for professional development. The knowledge
The Civil Service is a knowledge-intensive organisa- that these employees possess must be used and disse-
tion with leading centres of expertise in many fields. minated to the benefit of the organisation. It is important
Ensuring that this knowledge is utilised, maintained both for the organisation and for the individuals con-
and further developed is a challenging task. Moreover, cerned that long experience is valued.
there are shortages in the labour market in many fields,
and the Civil Service has to compete for highly qualified Civil Service managers must:
personnel. There is a need to further develop and • take responsibility for ensuring that the Civil

express the advantages of working in the Civil Service: Service is perceived as an attractive employer;
meaningful and socially beneficial tasks, good oppor- • meet the challenges that arise in our knowledge

tunities for professional development in stimulating society through targeted recruitment policies,
learning and knowledge environments, well regulated, opportunities for professional development, and
secure working conditions, good flexible working systematic development of the agency’s skills and
hours and leave of absence schemes, and competitive expertise;
pension schemes. • contribute to the development of a stimulating

multidisciplinary learning environment and a

Competent and highly qualified employees have high healthy and inclusive working environment;
expectations with regard to their work, their oppor- • recruit persons from minority groups and disabled

tunities for professional development, autonomy and persons, and ensure diversity and a good gender
level of responsibility. Creative, independent employees, balance in the agency; and
who have secure working conditions, are decisive for • help to ensure that senior employees stay in work

ensuring both high quality and innovative solution of longer, for example by utilising their expertise and
tasks. Leadership in knowledge organisations is both giving them opportunities to renew their skills
demanding and rewarding. Leaders must ensure the and expertise.
appropriate delegation of responsibilities, positive
dialogue, professional guidance, personal feedback
and proper organisation of work processes. There
should be a framework for systematic and structured
training programmes, for example exchanges between
different workplaces. The Civil Service frequently has
to solve tasks that require assistance from other experts.
Therefore a culture of interdisciplinary cooperation
and professional development across professional
boundaries is vital for achieving the best possible results.
For reflection
The Civil Service must utilise the breadth and diversity
of the labour market. This is important with a view to ¥¥ Do you and your staff have the necessary
creating a more inclusive workplace and increasing skills and expertise?
¥¥ What are the learning and development
the recruitment base. Diversity in the workplace
opportunities in your agency?
increases creativity, and the breadth and quality of
¥¥ What are you most pleased with?
the task solution. Moreover, the Civil Service should
¥¥ What are you least pleased with?
reflect the diversity of the society it serves. This indicates ¥¥ What is needed to make the conditions for
the need for a recruitment policy that pays regard to learning and development even better?
the gender perspective and equal pay and also incre- ¥¥ What can you do, as a leader, to attract
ases the proportion of employees from minority groups competent personnel?
and employees with disabilities. The Civil Service must ¥¥ Are you, as a leader, able to fully utilise the
have a personnel policy adapted to the various phases expertise in your agency?
of life and ensure that older employees remain in work

11
2. Focus areas for leadership in the Civil service

2.4 Co-determination and participation a culture of cooperation through openness, ac-

countability, democratic dialogue and involvement;
• seek actively to create a performance-oriented,
Civil Service leaders are obliged to comply with the
democratic rules and regulations governing working bold and creative learning and development
life. Section 110 of the Constitution sets out “the right environment where employees’ skills, expertise,
of employees to co-determination at their workplace”. talents and ideas are utilised;
• demonstrate the ability and willingness to bring
The employees are directly involved in the solution
of tasks as individuals, but also exert an indirect out the best in each employee and encourage
influence through their employees’ organisations. employees to take responsibility for their own
development and task solution;
• utilise the opportunities provided by legislation
Employees have considerable opportunity for co-deter-
and agreements, respect employees’ representatives
mination in administrative matters through their org-
and their role, and provide a proper framework for
anisations and employees’ representatives. The employ-
real co-determination in matters relating to the
ees’ organisations have the right to negotiate salary
working environment and working conditions; and
and working conditions, and the right to receive infor-
• take responsibility as employers in decision-making
mation and to take part in discussions and negotiations
processes, involve employees and employees’
in accordance with the relevant agreements. Represen-
representatives and ensure through these proc-
tative democracy in working life safeguards individual
esses that there is a legitimate basis for imple-
interests, provides a secure basis for development
menting the decisions taken.
and innovation, and provides knowledge, frameworks
and procedures for dialogue, cooperation and conflict
management.

Norwegian managers tend to have an informal, inclusive,

supportive and non-authoritarian leadership style. They
give their staff considerable autonomy and opportunities For reflection
to participate actively in the solution of tasks and the
development of processes in the workplace. There is Participation and co-determination are mutually
opportunity for participation both in relation to the dependent, and the parties must have a shared
individual’s tasks and through interaction with others sense of ownership and responsibility in order
in various groups or teams. Employees are generally to realise these forms of involvement, results and
highly motivated to use their professional expertise. development. One of the main challenges in the
This must be actively utilised in the development of time to come will be to develop cooperation in
working methods and high-standard performance. the Civil Service in a way that facilitates flexible
and customer-friendly services with a good
The Civil Service will actively follow up the legislation working environment, high quality leadership,
and agreements governing co-determination and better performance and a good relationship with
participation in cooperation with the employees’ the general public (cf. Section 1.1 of the Basic
organisations. Co-determination and participation must agreement for the Civil Service).
be practised in such a way that they contribute to ef-
fective development, solution of tasks and results. Public ¥¥ How does this affect your leadership role,
sector reforms are to be achieved by means of better and what can you do to meet this challenge?
use of technology, more expedient organisation and ¥¥ What is your relationship with employees’
solution of tasks and better use of employees and representatives and organisations? What can
their talents, ideas and ability to find solutions. you do to develop this relationship?
¥¥ What is your educational background as
Civil Service managers must: regards legislation and agreements?
• foster an atmosphere of trust, and seek to develop

12
 Leadership in Norway’s Civil Service

3. Leadership development in the Civil service

The broad range of objectives and tasks addressed by various objectives and considerations, and managers
the public administration makes it difficult to define will have to be able to deal with dilemmas in a responsi-
exactly the role of a Civil Service leader. The form of ble way. The leadership role will be affected by local
leadership will also be determined by the type of agency and regional conditions and by a number of different
and the level of management in question. High-level internal and external factors, and managers must
officials, middle-level officials and first-line managers continuously assess the need for change and renewal.
have different responsibilities and different tasks, and
these will influence the content of the leadership role Despite these differences, there are some general
in different ways. functions that all managers must succeed in handling
and adapting to their role and position in the admini-
All Civil Service managers must clarify their own areas stration. These are strategic functions, operational func-
of responsibility and have a clear perception of the tions, administrative and work processes, relational
leadership role and of the forms of leadership that are functions (both internal and external) and information
most appropriate. There may be a clash between the and communication functions.

Factors affecting leadership

in the Civil Service
External factors such as:
• The general public’s increased expectations
of the public sector
• Environmental and climate challenges
• Media attention
• The influence of the international community,
particularly the EU
• An increasingly diverse society
• Influences from professional organisations
and other interest groups
• Challenges associated with rapid technological
development

Internal factors such as:

• Developments in the Storting and its relationship
to the government
• Changes in the relationship between politics
and administration
• Greater expectations of leadership from superiors,
colleagues and employees with a high level of expertise
• Greater diversity among employees
• Changes in the range of tasks to be performed
by the Civil Service
• Organisational and structural changes in the public sector
• Changes to legislation and the legal basis for the Civil Service
• Requirements for performance management and reporting
• A higher level of control through greater focus on
oversight and performance audits
• Requirements related to public procurement
• Requirements for cooperation, negotiation and mediation

13
3. Leadership development in the Civil service

Strategic functions. Managers at all levels have to Building relations. Managers must establish, foster
make choices and set priorities, for example with regard and develop relations both within and outside their own
to targets, plans and effective measures. Before such agencies. All Civil Service managers are part of a pol-
decisions are taken, the expectations of higher autho- itically governed apparatus, including those who have
rities, target groups and customers as well as the little or no direct contact with the governing political
manager’s own staff must be clarified. All Civil Service leadership in their day-to-day work. Building relations
managers are responsible for following up sectoral is important for ensuring that political signals are
policy objectives in their own areas and for complying picked up and implemented effectively. Managers
with the general regulations and values governing must build solid working relations with their own
the public administration. staff and the employees’ organisations. High-level
officials have a particular responsibility for ensuring
Managers must: that sound personnel management is practised through-
• decide how financial, human and other resources out the agency.
are to be used in order to ensure the best possible
performance, and organise personnel management The various agencies in the Civil Service have all been
accordingly; established for the benefit of the general public and
• choose methods, coordination procedures and for the customers. The customers may be individuals,
forms of leadership that produce the best results; companies, groups or organisations. Leaders have a
and responsibility to listen to the various target groups
• view facts in the light of expert assessments of and to relay experience and feedback to those who
risks and impacts. Decision making can be par- set the framework conditions. Civil service managers
ticularly demanding for Civil Service managers must contribute to closer coordination between agencies
since their decisions often affect the general and administrative levels in order to ensure effective
public. use of resources and prevent unnecessary fragmentation.
Civil service managers are often required to balance
Operational functions. Managers often have to different interests and in some cases help to resolve
introduce, develop and maintain systems in order to conflicts. Civil service managers have a responsibility
ensure that tasks are performed and goods and services for preventing and reducing conflicts, both between
are delivered. This applies in particular to technical, different interest groups and between individuals
financial and personnel systems. The manager must
ensure best possible general administration, personnel Communication and information functions.
management, financial management and quality The Civil Service shall be characterised by transparency
assurance. both in relation to the general public and the employees
and between the various parts of the public admini-
In large agencies, the responsibility for various opera- stration. This means that managers have to ensure
tional functions may be delegated to managers at lower adequate communication and the dissemination of
levels. In small agencies, the top senior executive may necessary information. Information and communication
have to take care of a number of tasks relating to day- have their own intrinsic value, but are also vital for
to-day operations. High-level officials must in any case successful task solution and for developing democracy
distribute the responsibility for operations and results, in working life and society as a whole. The Public
and ensure that the agency complies with the relevant Administration Act and the Freedom of Information
requirements and standards, for example for financial Act provide clear guidelines for this. Each individual
management, quality, and health, safety and environment. manager must think through how this responsibility
is to be carried out.

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 Leadership in Norway’s Civil Service

For reflection
¥¥ What external conditions are particularly important ¥¥ How much time do you spend on functions
for the area you are responsible for? relating to strategy, administration, relations
What significance does this have for your leadership? and information?
¥¥ What internal factors have the greatest effect on ¥¥ Is the distribution of your time as you would wish?
¥¥ If not, how would you like this to change?

What are the main challenges may be useful for managers who wish to increase
of your leadership role? their awareness of their leadership role. It may be
The table below shows the links between the four more relevant to ask other questions that relate more
basic leadership functions and the four focus areas. specifically to a particular leadership situation or
The green cells contain examples of questions that area of responsibility.

Functions Focus areas

TARGET, RESULTS AND COOPERATION AND COMPETENCE, LEARNING CO-DETERMINATION
COSTUMERFOCUS COORDINATION AND DEVELOPMENT AND participation

Strategy • What are the right • Who is it important to • What strategies are • How are the
priorities? cooperate with? needed for developing employees and
• What needs to be • To what extent is your own and your employees’
achieved in relation coordination with staff’s skills and organisations involved
to the various other units or agencies expertise? in strategic processes?
customer groups? needed?

Operations • How well do systems • How can I ensure that • What should I do to • How good is my
and routines work in cooperation and develop a more personnel management?
your area of respons- coordination really professional • To what extent
ibility? take place? administration? could the administration
• How are work processes be made more effective
organised, and how can through greater em-
they be improved? ployee participation?

• Which employees
BUILDING • What should I do to • What skills and • What can I do to promote
should have primary promote a proper
RELATIONS expertise are important a sense of participation on
responsibility for internal climate of to develop in my area an equal footing between
which tasks? cooperation? of responsibility? the various units in the
• How can I achieve agency?
good external • What can I do to resolve
interaction? the tense relations with
NN?

COMMUNIC • What must I do to • What information • How can I develop • What should I do to
ACTION AND establish a communi- do our cooperation my own and my staff’s improve communi-
INFORMATION cation and information partners need? communication skills? cation and cooperation
platform in the agency? • How can ICT be used with the employees’
to promote communi- organisations.
cation and coordination
externally?

15
3. Leadership development in the Civil service

It is important to reflect on the expectations of the leadership responsibility, role and ambitions. This
leadership role, not only because this is part of taking should be done both with a view to their own staff’s
one’s own leadership seriously, but also in order to needs and with a view to clarifying the interface with
see the situation from the perspective of other the other managers in the agency. Leadership is a
colleagues: “How can I develop, and how should we social phenomenon and can only be practised and
develop each other, so that we can become an even developed in interaction with others.
better leadership group?”
The box below sets out some key words that may help
High-level officials have a particular responsibility for managers to review and further develop their leader-
putting leadership on the agenda. It is vital that mana- ship profile. They can also be used by leadership
gers give one another support and encouragement to groups that are developing a leadership programme
further develop their leadership skills. It is also in for their agency.
the interest of individual managers to review their

Elements that can be used in developing your own leadership profile

As a leader in the Civil Service, I have:
• A standpoint: My leadership is based on fundamental democratic and administrative values.
• A privilege: I am taking part in efforts that further develop democracy, the rule of law and the welfare state.
• A vision: I want to be part of a team of employees and colleagues, working effectively together
to ensure the best possible results for customers and the general public.
• An ambition: I want to practise a form of leadership that has the highest ethical standards and can
set an example for others.
• A commitment: I am aware of my leadership responsibility and will, to the best of my ability,
give concrete answers to these questions:

¥¥ What are my main priorities as a leader? [strategic focus]

¥¥ What is the most important achievement I want to accomplish in the agency as a whole or the unit
under my charge? [focus on results]
¥¥ What attitudes and behaviour do I want to practise for the personnel under my charge? [focus on staff]
¥¥ What are my most important contributions outside the agency or unit? [cross-organisational focus]
¥¥ How can I ensure the right focus on the general public and specific customers? [societal focus]

16
 Leadership in Norway’s Civil Service

This document and the poster on this page, are available at www.regjeringen.no/ledelsesplattform

A leader in Norway’s Civil Service...

… manages and develops public resources

Leaders uphold democratic and constitutional values, irrespective of political power. They administer
resources on behalf of present and future citizens, achieving results for the common good.

…assists publicly elected authorities

Leaders adhere to political rulings and the needs of citizens. They uphold professional integrity
and assist in making informed and rational decisions.

…ensures openness and involvement

Leaders ensure that communication with members of the public and agencies is developed through
openness, discussion and plain language. They encourage employee participation and accountability.

…cooperates across the public sector

Leaders aim to develop public management as a solution-oriented arena characterised by cooperation
and flexibility.

…creates attractive workplaces

Leaders practise and promote expertise and diversity within their activities. They use new technology
and varied working methods.

17
Published by:
Norwegian Ministry
of Government Administration and Reform

Public institutions may order additional copies from:

Norwegian Government Administration Services
Distribution Services
www.publikasjoner.dep.no
E-mail: [email protected]
Fax: +47 22 24 27 86

Publication number: P-0946 E

Illustration and design: Anne Leela, Gjerholm Design as
Print: Aktiv Trykk as 09/2008 - Impression 1000